CONTESTED TERRAIN RECONCEPTUALISING SECURITY IN THE PACIFIC CONTESTED TERRAIN RECONCEPTUALISING SECURITY IN THE PACIFIC STEVEN RATUVA PACIFIC SERIES Published by ANU Press The Australian National University Acton ACT 2601, Australia Email: [email protected] Available to download for free at press.anu.edu.au ISBN (print): 9781760463199 ISBN (online): 9781760463205 WorldCat (print): 1117322426 WorldCat (online): 1117322368 DOI: 10.22459/CT.2019 This title is published under a Creative Commons Attribution-NonCommercial- NoDerivatives 4.0 International (CC BY-NC-ND 4.0). The full licence terms are available at creativecommons.org/licenses/by-nc-nd/4.0/legalcode Cover design and layout by ANU Press This edition © 2019 ANU Press Contents Preface . vii 1 . Introduction: Interconnected and multifaceted security . 1 2 . Exploring the contours of threat: Competing security discourses . 17 3 . Swirling and divergent waves: Selected security dilemmas in Oceania . 47 4 . End of coups?: Fiji’s changing security environment . 105 5 . Thy kingdom burn: Hegemony, resistance and securitisation in Tonga . 155 6 . Longing for peace: Transformation of the Solomon Islands security environment . 205 7 . Contested future: Where to for Pacific security? . 251 References . 267 Preface The world is confronted with multiple issues of security challenges, and how we understand these challenges is often based on parochial prisms that serve our own political, ideological and economic interests. This self- centric framing of security is part of the challenge that we must confront. This book is an attempt to address some of these challenges by exploring how the use of multiple lenses could help enrich our understanding of the interconnected layers of security thinking and practices. Although the case studies used are from the Pacific, the broader conceptual narratives have universal resonance. In a world where security issues are linked to socioeconomic, political, ethnic, ideological and environmental issues, unpacking these connections in a way that makes analytical and policy sense is imperative. The book is a result of data accumulated over three years of research (both field and archival), conferences, workshops and seminars. It is one of four books I have written that were funded by a New Zealand Marsden Fund research grant. Like any other book in social science, it is a kind of ‘work in progress’, in the sense that, by the time the book is published, it will already be overtaken by continuously unfolding security issues. Hence there is a temptation to update either by producing another edition or even a separate follow-up volume. But this is not the intention, at least for the time being. Security by its very nature is contested, and the debate about regional security in the Pacific is multidimensional and reflects the transforming and precarious nature of global security. What constitutes security is subject to multiple discourses, and to privilege one set of security variables over another, as is often done by researchers and policy-makers, can be unwise given the multifarious factors that shape our security environment. The book attempts to weave together both conceptual analysis and applied narratives in a symbiotic way, where one informs and shapes the other. vii CONTESTED TERRAIN It has an interdisciplinary approach and is meant to be used by academics, researchers, policy-makers, security experts, regional and international agencies, civil society organisations and the public at large. Ultimately, it is hoped that the book will contribute to understanding some of the deeper issues of conflict that continue to fracture communities with the hope of finding lasting solutions for a peaceful Pacific and a peaceful humanity. The book is a result of invaluable contribution by a number of people and institutions. The funding for this research was generously provided by the Marsden Fund of the Royal Society of New Zealand. This is one of the four books that benefited from the Marsden funding. I also acknowledge the support of the Faculty of Arts at the University of Canterbury and other project collaborators on Pacific regional security, including the United Nations Development Program and United Nations regional office in Fiji, Department of Pacific Affairs (The Australian National University) and other individuals and organisations who were represented in a series of conferences and seminars that were part of the Marsden project on regional security. I also acknowledge the proficient role of the anonymous reviewers and Fulbright New Zealand for providing me the opportunity in 2018 to complete parts of the manuscript while based at UCLA, Duke University and Georgetown University as a Fulbright senior fellow. My special thanks to the numerous groups and individuals around the Pacific, especially Fiji, Tonga and Solomon Islands, who participated in various direct or indirect ways in the project. A number of individuals need special mention. My sincere thanks to Professor Stewart Firth of The Australian National University for his professional advice and contribution to editing and arranging the publication logistics. I also extend my hearty thanks to John Moriarty, who worked hard on editing the first draft, and Cathryn Game for her meticulous work on copy-editing the manuscript. Last but not least, I thank my wife Mere for her moral support on this incredible journey. viii 1 Introduction: Interconnected and multifaceted security We must concentrate not merely on the negative expulsion of war, but on the positive affirmation of peace. Martin Luther King The few months I spent in the United States in 2018 as a senior Fulbright scholar at University of California, Los Angeles (UCLA), Duke and Georgetown reinforced in my mind some of the contradictory manifestations of security in our contemporary era. Here was a country so militarily, politically and economically powerful, yet so insecure and paranoid about its own sense of identity, being and security. Here was a country that prided itself in being a hub of multiculturalism, yet there was so much division, tension and anxiety. Here was a country that marketed itself as the richest in the world, where the ‘American dream’ was a divine destiny, yet I witnessed so much poverty, homelessness and economic insecurity as I wandered the streets of Los Angeles and other major US cities. This situation of contested narratives of security reflects the philosophical backdrop to this book. An experience of ‘security’ in one context may be the basis for ‘insecurity’ in another. Contending notions of security define the shifting prisms through which we socially construct our lived experiences and the dramatically changing world around us. 1 CONTESTED TERRAIN The concept of security is often contested, given the different normative and empirical approaches as well as the different conceptual emphasis used by scholars (Baldwin, 1997). The normative differences can be a result of varying methodologies used and competing political, gender and cultural assumptions as well as different ideological outlooks, which may colour how security is conceptualised in everyday life or operationalised in policies (McLeod, 2015). The same can be said of Pacific security, where discussions have been wide-ranging with different authors emphasising different discourses and priority areas. One of the latest Pacific regional security agreements, the Boe Declaration on regional security endorsed by the Pacific leaders in September 2018, emphasised the primacy of climate change as ‘the single greatest threat to the livelihoods, security and well- being of the peoples of the Pacific’ (Pacific Islands Forum Secretariat, 2018: 10). Others see political security and conflict as central issues that need greater focus, given some cases of instability in some Pacific countries in the past (for instance, see Henderson & Watson, 2005). The point is that while the selective emphasis may appear to help desegregate and simplify issues, it tends to prioritise and privilege some approaches while undermining the significance of some. At the same time, it has the potential to conceal the social synergies and historical connections between issues. This book attempts to contribute to discussions on Pacific security using the analytical eclecticism approach, which selectively recombines different strands of discourses and focuses on connecting abstract theorisation with applied analysis and policies (Sils & Katzenstein, 2010). Within this broad parameter, the book weaves together different discourses in an interdisciplinary way to examine various dimensions of security and their connecting synergies, including their policy implications. The use of multiple prisms could help in enriching our understanding of the complex interconnections between the different aspects of Pacific security, some of which are more visible and some of which are more subtle. Each aspect, whether, political, economic, sociocultural, environmental or psychological, is interconnected in both manifest and latent ways. In doing so, the book attempts to provide a critique of some paradigms often used in analysis of Pacific security and raises questions about their reliability in the context of a fast-changing and complex region. In this regard, the book deliberately sets out to combine both theoretical discourse and empirical analysis of case studies. The first three chapters are heavily conceptual and attempt to unpack some of the philosophical assumptions and sociological debates about